INFORMATION TO USERS This reproduction was made from a copy of a document sent to us for microfilming. While the most advanced technology has been used to photograph and reproduce this document, the quality of the reproduction is heavily dependent upon the quality of the material submitted. The following explanation of techniques is provided to help clarify markings or notations which may appear on this reproduction. 1.The sign or “target” for pages apparently lacking from the document photographed is “Missing Page(s)”. If it was possible to obtain the missing page(s) or section, they are spliced into the film along with adjacent pages. This may have necessitated cutting through an image and duplicating adjacent pages to assure complete continuity. 2. When an image on the film is obliterated with a round black mark, it is an indication of either blurred copy because of movement during exposure, duplicate copy, or copyrighted materials that should not have been filmed. For blurred pages, a good image of the page can be found in the adjacent frame. If copyrighted materials were deleted, a target note will appear listing the pages in the adjacent frame. 3. When a map, drawing or chart, etc., is part of the material being photographed, a definite method of “sectioning” the material has been followed. It is customary to begin filming at the upper left hand corner of a large sheet and to continue from left to right in equal sections with small overlaps. If necessary, sectioning is continued again—beginning below the first row and continuing on until complete. 4. For illustrations that cannot be satisfactorily reproduced by xerographic means, photographic prints can be purchased at additional cost and inserted into your xerographic copy. These prints are available upon request from the Dissertations Customer Services Department. 5. Some pages in any document may have indistinct print. In all cases the best available copy has been filmed. Uni International 300 N. Zeeb Road Ann Arbor, Ml 48106 8526212 Martin, Janet Marie CABINET SECRETARIES FROM TRUMAN TO JOHNSON: AN EXAMINATION OF THEORETICAL FRAMEWORKS FOR CABINET STUDIES The Ohio State University Ph.D. 1985 University Microfilms International300 N. Zeeb Road, Ann Arbor, Ml 48106 Copyright 1985 by Martin, Janet Marie All Rights Reserved CABINET SECRETARIES FROM TRUMAN TO JOHNSON: AN EXAMINATION OF THEORETICAL FRAMEWORKS FOR CABINET STUDIES DISSERTATION Presented in Partial Fulfillment of the Requirements for the Degree Doctor of Philosophy in the Graduate School of The Ohio State University By Janet Marie Martin, B.A., M.A. The Ohio State University 1985 Reading Committee: Approved By Herbert Weisberg John Kessel Elliot Slotniek Adviser Department of Political Science Copyright by Janet Marie Martin 1985 / To my Mother, who urged me to stop, and To my Advisor, Herb Weisberg, who urged me to go on; Both strategies succeeded. ii ACKNOWLEDGEMENTS Many colleagues and friends have offered encouragement and support during the past five years since this dissertation project began. To them I offer my sincere appreciation and thanks. My advisor, Herb Weisberg, deserves my extreme gratitude and thanks for believing that, "yes, Janet, you really will finish," and for working endlessly towards encouraging, guiding, and shaping that belief into reality. I would also like to thank the members of my reading committee, John Kessel, for his detailed comments and insight throughout this project, and Elliot Slotnick, whose suggestions and ideas added to the clarity and organization of the final manuscript. My family— ray mother, Mary Martin, and sisters Judith Ann and Jean T., and my brother-in-law Bob— have each, in their own way, given support throughout my work. And they all have my warmest thanks. I give very special thanks to my friend, John Winship, who, during the past two years, not only painstakingly read, re-read, and edited as many drafts of chapters as I was able to produce, but also never failed to offer support and words of encouragement at those moments when they were most needed. I would also like to thank several resource centers that greatly iii facilitated this research. The staff and archivists of the following presidential libraries were most helpful in their research assistance either at the libraries or in providing inter-library loan materials, and I thank them for their assistance: Harry S. Truman Presidential Library; Dwight D. Eisenhower Presidential Library; John F. Kennedy Presidential Library; and Lyndon B. Johnson Presidential Library. For financial assistance I thank the Harry S. Truman Library Institute and The Ohio State University Graduate School Alumni Research Awards Committees for research grants that allowed for travel to the presidential libraries. I am also appreciative of the tuition grant provided by Dean David Potts of Gettysburg College. I am grateful to the Polimetics Laboratory at The Ohio State University, especially Jim Ludwig and Mark Teare, for their assistance in data preparation, and to the Academic Computer Center of Gettysburg College and its entire staff— Dick Wood, Bill Wilson, and Kim Breighner— for unfailing and ingenious help in providing services and facilities in the face of all manner of disasters, natural and otherwise. iv VITA Date and Place of Birth: August 23, 1955 Milwaukee, Wisconsin Academic Career: Honors B.A. Summa Cum Laude Marquette University, May 1977 M.A., The Ohio State University June, 1980 Fields of Study: Major: American Politics (Executive and Bureaucratic Politics, Legislative Politics, Urban Politics, Political Parties) Minor: International Relations (U.S. Foreign Policy Decision Making) Teaching Positions: Instructor, Gettysburg College 1983 to present Graduate Teaching Associate, Department of Political Science, The Ohio State University, 1981-83 Graduate Research Experience: Graduate Research Associate, Department of Political Science, 1978-79; 1982 Polimetrics Laboratory: Survey Research, The Ohio State University, 1979-81 Administrative Positions: Graduate Administrative Associate, Graduate School, President, Council of Graduate Students, 1981-82; Public Affairs, The Ohio State University, 1982-83 Fellowships and Research White House Fellowship Competition— Awards: Regional Finalist, 1983-84 Harry S. Truman Library Institute Grant-in-Aid, 1982 University Fellow, 1977-78; Graduate Student Alumni Research Award, 1982, The Ohio State University v TABLE OF CONTENTS Page DEDICATION........................................................... ii ACKNOWLEDGEMENTS..................................................... iii VITA.................................................................. v LIST OF TABLES....................................................... xi CHAPTER 1. INTRODUCTION................................................... 1 CABINET STUDIES IN RETROSPECT............................... 4 RECENT METHODOLOGICAL APPROACHES............................ 7 FOCUS OF THIS STUDY .................................. 10 THEORETICAL FRAMEWORKS FOR STUDYING CABINET SECRETARIES........................................ 13 The Inner/Outer Cabinet Distinction.................... 13 Balance.................................................. 15 Issue Networks........................................... 15 The Partisan Factor..................................... 16 The "Naive" View of the Cabinet........................ 17 Initial Versus Midterm Appointments.................... 18 vi BRIEF OVERVIEW OF CHAPTERS.................................. 19 FOOTNOTES.................................................... 23 2. RECRUITMENT AND BACKGROUND CHARACTERISTICS................... 28 BALANCE AS A FRAMEWORK FOR CABINET STUDIES................. 29 An Illustration of Balance: Political Rewards...................................... 35 A Final Look at Balance................................. 38 FEDERAL SECTOR EXPERIENCE................................... 40 Analysis of Federal Sector Experience.................. 45 Initial and Midterm Appointments.................... 46 THE INNER CABINET AND THE OUTER CABINET AS A FRAMEWORK FOR CABINET STUDIES............................................. 53 The Role of the Inner Cabinet........................... 54 Inner and Outer Cabinet: Federal Governmental Experience.................... 58 The Inner and Outer Cabinet: Prior Governmental Service............ 61 The Inner Cabinet and the Outer Cabinet: Non-governmental Experience......................... 65 CONCLUSIONS ............................................ 66 FOOTNOTES.................................................... 69 3. ROLE PERCEPTION................................................ 73 THE "NAIVE" VIEW OF THE CABINET............................. 74 Textbooks and the President's Cabinet.................. 75 The Press................................................ 80 vii The President’s Perspective............................. 81 The ’’Naive” View of the Cabinet— Another Look......... 86 METHODOLOGY.................................................. 94 The Categorization Scheme............................... 96 Policy-making............................................ 98 Efficiency and Effectiveness in Administering Department............................... 99 Follow Laws/Constitution................................ 100 Advise/Serve President.................. 100 Serve Nation/Public..................................... 102 Work With Congress...................................... 103 Serve Clientele Needs................................... 105